California State Legislature
Senate Committee on
Industrial Relations
RICHARD ALARCÓN
Chair
1999 - 2000
Legislative Summary
Members: Staff:
Richard Mountjoy, V-Chair Patrick W. Henning
Liz Figueroa Steve Holloway
Ray N. Haynes Clem Meredith, Jr.
Betty Karnette Joy Henderson
Bill Morrow Rosa M. Castaños
Hilda L. Solis
November 1, 2000
1999-2000 Session Legislative Summary
of the Senate Committee on Industrial Relations
Dear Friends:
As the ne w Chair, I am proud to s ubmit my first re port of labor legislative action,
covering the 1999-2000 Legislative Session. I believe such a report serves as an important
resource of major inte rest to my fellow legislators, labor organizations, employer
associations, community groups, individual employers and worke rs, and the Governor’s
office.
As we begin to ente r the 2001-02 Legislative Session soon, I encourage all interested
parties to actively participate in the Committee’s process. Such involvement is crucial to
developing sound labor and employment relations policy for the people of California.
A copy of this summary is also hosted online at the Committee’s web site at
www.sen.ca.gov.
If you need additional information regarding this summary, or activities of the
Committee, please contact my staff at 916-445-1237.
Yours truly,
RICHARD ALARCÓN, CHAIR
Senate Committee on Industrial Relations
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TABLE OF CONTENTS
 WORKERS' COMPENSATION Pg. 1
 WAGES & HOURS / LABOR STANDARDS Pg. 14
 OCCUPATIONAL SAFETY AND HEALTH Pg. 30
 PUBLIC WORKS AND PREVAILING WAGES Pg. 36
 UNEMPLOYMENT INSURANCE &
STATE DISABILITY INSURANCE Pg. 40
 JOB TRAINING Pg. 45
 CLASSIFIED EMPLOYEES AND
OTHER LEGISLATION Pg. 51

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WORKERS’ COMPENSATION
Background
California‟s workers‟ compensation system was established in 1913 and provides the exclusive
remedy for industrial injuries, irrespective of the fault of the employee or employer. Injured
workers receive medical treatment without cost to the employee and receive a variety of benefits
to compensate for injuries arising out of and in the course of employment.
All employers in California, except the state, must secure payment of workers‟ compensation
insurance through purchase of an insurance policy or a certificate of self- insurance. The state is
a legally uninsured employer.
Disputes are adjudicated by worker‟s compensation judges employed by the Division of
Worker‟s Compensation in the Department of Industrial Relations. The Workers‟ Compensation
Appeals Board may reconsider decisions of these judges.
Workers‟ compensation benefits consist of the following:
Temporary and Permanent Disability. Workers' compensation disability indemnity benefits are
paid at the rate of 2/3 of the worker's average weekly wage at the time of the injury or illness
caused by employment but are subject to statutory minimums and maximums.
Temporary disability benefits are paid during the period that a worker recovers from an illness or
injury. The minimum benefit is the lesser of $126 per week or 2/3 of 1.5 times the employee‟s
average weekly wage paid by all employers. The maximum benefit is $490 per week.
Permanent total benefits are paid to a worker whose injury results in a total disability. The
minimum benefit is $112 per week and the maximum benefit is capped at $490 per week for life.
Permanent Partial Disability. Permanent partial disability benefits are paid to workers whose
injury or illness leaves them permanently but only partially impaired. This benefit is capped at
$140 per week for a disability up to 14.75 percent, $160 per week for a disability between 15 and
24.75 percent, $170 for a disability between 25 and 69.75 percent, and $230 for a disability
between 70 and 99.75 percent. The minimum benefit is $70 per week.
The number of weeks for which permanent partial disability payments are allowed is based on
the percentage of permanent disability and increases with the severity of the disability. The
duration of benefits ranges from three weeks for a one-percent disability to 694 weeks (over 13
years) for a 99.75 percent disability.
Vocational Rehabilitation. The Administrative Director (AD) of the Division of Workers‟
Compensation is required to establish a vocational rehabilitation unit, which has specified duties,
including approving vocational rehabilitation plans developed by a qualified rehabilitation
representative. The maximum aggregate vocational rehabilitation counselor fee that may be
charged is $4,500.
1
An employee may receive additional living expenses while receiving vocational rehabilitation.
This vocational rehabilitation maintenance allowance is capped at $246 per week. In no event
may the counseling fees, maintenance allowance, and costs associated with, or arising out of,
vocational rehabilitation services incurred after the employee‟s request for vocational
rehabilitation services, except temporary disability payments, exceed $16,000.
Life Pension. A worker who is 70 percent or more disabled, but less than 100 percent disabled
receives a life pension for the remainder of his or her life when the permanent partial benefits are
exhausted. This benefit is paid at the rate of 1.5 percent for each degree of disability above 60
percent and ranges from a maximum of $39 per week for a 70 percent disability to $154 per
week for a 99.75 percent disability.
Death Benefits. Total and partial dependents of a worker who dies as a result of an industrial
injury are entitled to a death benefit. These benefits include $125,000 for a single total
dependent, $145,000 where there are two total dependents and $160,000 for three or more total
dependents. This benefit is paid at the rate of temporary disability benefits, but not less than
$224 per week, until the benefit amounts are exhausted. A minor who was totally dependent on
the deceased worker receives the benefit until reaching the age of 18, notwithstanding the
maximum limitation.
Presumptions. If specified public safety personnel (peace officers and firefighters) suffer a
hernia, heart trouble, pneumonia, cancer or tuberculosis, the injury or illness is presumed to be
compensable if the problem develops or manifests itself during a period of service by the worker.
Other evidence may controvert the presumption. If not controverted, the Workers'
Compensation Appeals Board is bound to find that the injury or illness "arose out of and in the
course of employment." Thus, it becomes compensable.
These presumptions apply to, among others, full or part-time law enforcement personnel
employed by a sheriff or a police department and firefighters employed by any city, county or
district fire departments. The presumptions do not apply to employees whose principal duties
are clerical and clearly do not fall within the scope of active law enforcement or firefighting
duties. Generally, the presumptions extend to a period beyond emp loyment equaling three
months for each year of service, but not more than 5 years.
4850 Time. Existing law provides for a leave-of-absence up to one year with full pay in lieu of
workers' compensation temporary disability payments for specified disabled public safety
employees, including police officers; firefighters; sheriffs; district attorney and Department of
Justice law enforcement personnel, members of the Highway Patrol, probation officers, and
specified peace officers and lifeguards employed by the County of Los Angeles.
This disability leave is also known as “4850 time” after the Labor Code section that provides for
this benefit.
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Significant Legislation
Senate Bill No. 320 (Solis) increases workers' compensation indemnity benefits and makes
changes in the administration of the workers' compensation system. Specifically, this bill
increases workers' compensation benefits by about 2.5% per year, over a six- year period, as
follows:
Temporary disability. Increases the minimum benefit to $126 weekly, regardless of earnings.
Increases the maximum weekly benefit from $490 to permanent total disability payments to the
greater of $651 or 1.5 times the state average weekly wage.
Permanent partial disability. Increases the minimum and maximum benefits over six years, as
follows:
For injuries occurring after January 1, 2005, the minimum benefit is $130 and the maximum is
$230.
Increases the number of weeks for which payments are allowed for injuries occurring on or after
January 1, 2002.
Life pension benefit. Increases the maximum life pension from $154 per week to $238.50 per
week.
Death benefit. Increases, effective January 2003, death benefits of $125,000, $145,000 or
$160,000 to $165,000, $195,000 or $215,000, respectively.
The bill also incorporates virtually all system reforms proposed by the administration.
These provisions:
Create a court administrator to supervise trial level activities at all local boards and add eight
judges.
Expand arbitration of disputes, mandate a study of the system‟s judicial functions, require
recommendations for simplifying and reducing paperwork, and improve training and education
of physicians in the system.
Expand arbitration of disputes, mandate a study of the system‟s judicial functions, require
recommendations for simplifying and reducing paperwork, and improve training and education
of physicians in the system.
Target audits on insurers with poor performance records and identify illegally insured employers.
Permit insurers to increase rates at midterm, if necessary, and provide the State Compensation
Insurance Fund with flexibility in its investments.
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Support and Opposition.
The California Labor Federation and the California Applicants‟ Attorneys Association, co-
sponsors of this measure, and others stated that as a result of the 1993 workers‟ compensation
reform package, employers were to receive premium and other workers' compensation savings
and workers were to receive increased benefits. Savings to employers have far exceeded the
amount that was estimated to result when the 1993-reform legislation was enacted. Employers‟
average rates are down 48.5 percent since 1993 and total annual savings are over $5 billion, but
workers have received less than $500 million annually in higher benefits. Therefore, benefit
increases are justified.
Forty-two states index their temporary disability benefits to average weekly wages. Of these
states, 12 provide for a maximum amount under 100 percent of the state's average weekly wages,
22 provide for 100 percent of average weekly wages and 8 states provide for maximum amounts
higher than the average weekly wage. Only one state (Maryland) has a lower weekly maximum
permanent disability benefit. Our weekly maximum for most workers, $140, is less than one-
third the national average, $432.
The California Chamber of Commerce and others oppose any benefit increase without offsetting
reforms or easing of administrative problems in the system. Passage of benefit increases without
system reform is tantamount to a tax increase on California businesses. The Chamber noted that
the weekly maximum benefit for injured workers has increased by about 45 percent and there
were other generous benefit increases as a result of the 1993 reforms.
The Californians for Compensation Reform (CCR) stated that the Commission on Health and
Safety and Workers‟ Compensation (CHSWC) has invested well over $1 million to contract with
RAND Corp. to study benefit payout and wage loss in California - specifically, permanent
disability benefits. The permanent disability system is highly adversarial, litigious, and
excessively complex. Until this study is completed, CCR believes it would be premature to
increase benefits without this documentation
The Governor vetoed SB 320 in 1999.
Senate Bill No. 996 (Johnson) is essentially the same measure as SB 320 with the following
differences: 1) Increases permanent disability benefits over five (rather than six) years and
increases the maximum benefit for disability ratings over 70 percent to $270 per week (rather
than $230): 2) Adopts recommendations of the CHSWC regarding pharmacies; 3) Adopts
recommendations of the CHSWC regarding benefit notices; 4) Eliminates user contributions to
support the Division of Workers‟ Compensation and the Cal-OSHA Targeted Inspection
Program; and, 5) Revises the law regarding disclosure of medical information.
This bill was vetoed by the Governor in 2000.
Assembly Bill No. 1468 (Corbett) revises and expands the medical information which may be
disclosed to an employer by an insurer, third-party administrator retained by a self- insured
employer to administer the employer's workers' compensation claims, and those employees and
4
agents specified by a self- insured employer to administer the employer's workers' compensation
claims, as follows:
1) In addition to disclosing the diagnosis of the injury for which workers‟ compensation is
claimed, the underlying medical information that is relevant to the claim or that affects the
premiums or costs of the claim, and is necessary to understand the condition claimed or
diagnosed, or to evaluate any disputed medical issues relevant to the claim may be disclosed to
the employer.
No medical records or other medical information not directly related either to understanding the
condition claimed or diagnosed or to evaluating any disputed medical issues relevant to the claim
may be disclosed to the employer.
2) In addition to disclosing the medical information that is necessary for the employer to have in
order for the employer to modify the employee‟s work duties, the recommended treatment plan
and the estimated date on which the employee may return to work, together with any revisions to
the plan or date, may be disclosed to the employer. Information necessary to make other
reasonable accommodations for the employee‟s return to work, or to evaluate the employee‟s
eligibility for other employee benefits may be disclosed to the employer.
3) Upon the request of an employer, medical information permitted to be disclosed to the
employer pursuant to the above two provisions shall be released to employees or agents
designated by the employer if the information will only be used for administering the
workers‟ compensation program, complying with statutory obligations, or coordinating benefits.
Such medical information may not be disclosed by the employer or the employer‟s employees or
agents to any other persons or entities unless required or permitted by law or upon the written
consent of the injured employee who has filed the worker‟s compensation claim.
4) The provisions of the bill shall not be construed to prohibit the disclosure of the medical
information permitted to be disclosed to the employer pursuant to provisions 1) and 2) above
from being disclosed to health care providers who are employed by the employer and who are
involved in the medical evaluation, treatment, or rehabilitation of the injured employee who has
filed the worker‟s compensation claim.
5) The provisions of the bill shall not be construed to affect the rights and duties of an employer
pursuant the Confidentiality of Medical Information Act.
Support and Opposition
Proponents argue, generally, that this bill will enable them to administer their workers‟
compensation program expeditiously, fairly and in the best interests of their employees. At the
same time, the revisions in this bill continue to provide the appropriate and necessary
protections for the privacy of their employees. Employers recognize and support reasonable
protections for the privacy rights of employees, but must also fulfill their legal responsibilities
under the California Workers‟ Compensation Law. This bill will enable employers to administer
the law while protecting the rights of employees.
5
The CSAC Excess Insurance Authority states that this measure addresses specific problems and
obstacles that have arisen since the enactment of AB 435. For example, under the provisions of
this bill, employers will be better able to assess whether an employee‟s injury is such that an
offer of reassignment is appropriate and in the best interests of the injured employee. Current
law effectively precludes employers from giving consideration of reassignment or temporary
work in cases where the extent of an injury in not obvious or precisely articulated by the
employee. Knowledge about the nature and extent of an employee‟s injury is central to such
consideration, particularly for public sector employers who often have the capacity to coordinate
benefits and programs of the advantage of injured employees.
Opponents argue that this bill totally eliminates the medical privacy rights of injured workers and
oppose both the substance of the bill and the process which is a deliberate attempt to circumvent
the SB 996 (Johnston) conference committee.
Opponents state that some proponents of the bill incorrectly assert that AB 435 prohibits an
employer‟s access to any medical information whatsoever concerning an employee‟s claim for
injury. So such prohibition was created by this legislation; rather the measure merely limits an
employer‟s access to only that medical information which is necessary to determine whether or
not the medical treatment is appropriate under worker‟s compensation.
This bill would allow employers virtually unfettered access to all medical records of an injured
worker, literally abolish the worker‟s privacy rights, and specifically permit the employer to
obtain the worker‟s entire medical history for purposes which have nothing to do with
determining whether treatment for the injury should be provided under workers‟ compensation.
They further argue that the terms of the bill are overbroad and would generate additional
litigation over their applicability in each claim.
Opponents note that under existing law, when a claim for workers‟ compensation is filed by
the employee, an employer is entitled to that medical information which determinative of the
injury‟s work relationship, body part injured or condition for which treatment is claimed and job
modifications the physician believes are necessary for the employee to resume work. If there is a
dispute over the claim, medical information or records entered into evidence are public record.
Finally, it is argued that the subject matter of the bill should be referred to the SB 996
conference committee as the proper forum for determination and resolution.
This bill died in the Senate Industrial Relations Committee.
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_____________________________1999 - 2000 LEGISLATION________________________
SB 32 Peace Hepatitis
Chapter 490, Statutes of 2000
Creates a disputable presumption that hepatitis developing or manifesting itself with respect to
specified public safety personnel arises out of and in the course of employment or service.
SB 77 Murray Statute of Limitations
Chapter 358, Statutes of 1999.
Extends the statute of limitations for claims for workers' compensation death benefits in the case
of the death of health care and specific public safety workers from HIV-related disease.
SB 181 Perata Timely Payment
Died, Senate Industrial Relations
Committee
Prohibits an employer from delaying timely payment of compensation in anticipation of any
recovery by the employee either by settlement or after judgment.
SB 239 Perata Jockeys
Died, Assembly Insurance Committee
Authorizes the establishment of a nonprofit public benefit corporation which would be
responsible for securing workers‟ compensation insurance coverage on a blanket basis on behalf
of all licensed trainers for the benefit of all jockeys, apprentice jockeys, exercise persons, and
pony riders licensed by the California Horse Racing Board.
SB 320 Solis Benefits
Vetoed by the Governor.
Increases workers‟ compensation benefits and provides for system reforms. (See above)
The Governor stated in his veto message, “While I recognize that some benefits for injured
workers have fallen behind the cost of living in recent years, SB 320 increases benefits far
beyond what I believe California employers can absorb without negatively impacting the
economy.”
7
SB 457 Alarcón Medical-Legal Evaluations
Died, Senate Industrial Relations
Committee
Provides that if an employee is not represented by an attorney and the employee has received a
comprehensive medical- legal evaluation and he or she later becomes represented by an attorney,
he or she shall not entitled to an additional evaluation.
SB 812 Brulte Commission on Health and Safety and
Workers’ Compe nsation
Died, Senate Industrial Relations
Committee
Expands the Commission on Health and Safety and Workers‟ Compensation from eight to
ten members, as specified.
SB 947 Alarcón Vocational Rehabilitation
Died, Senate Industrial Relations
Committee
Sets the professional vocational rehabilitation services hourly rate at $70 per hour and requires
all vocational rehabilitation plans to include a job placement or job search preparation
component.
SB 996 Johnston Benefits*
Vetoed by the Governor
Increases workers‟ compensation benefits and provides for system reforms and is substantially
the same as SB 320 (Solis).
The Governor stated in his veto message: “This bill includes some improvements over the
provisions of its predecessor, SB 320, which I vetoed last year. However, as drafted, SB 996
would increase costs to employers statewide by more than $2.6 billion. This bill also includes
proposed reforms to the workers‟ compensation system that are not sufficient to support such a
large benefit increase without having an adverse impact on the California economy.
“All parties have come to recognize that the benefit paid to injured workers in California has not
been increased in many years and needs to be increased. I intend to sign a bill that incorporates
reasonable benefit increases and additional system reforms to ensure that California‟s system of
workers‟ compensation operates in a fair and cost efficient manner. “
Note: As introduced, the bill provided workers State Disability Insurance and workers'
compensation benefits regardless of a worker's immigration status.
8
SB 1023 Johnston Immigration Status
Died, Senate Industrial Relations
Committee
Provides workers State Disability Insurance and workers' compensation benefits regardless of a
worker's immigration status.
SB 1140 Morrow Liens
Died, Senate Industrial Relations
Committee
Revises the process by which the Employment Development Department files liens to recover
unemployment disability funds and to disallow workers‟ compensation benefits to an individual
receiving unemployment disability benefits, as specified.
SB 1246 Mountjoy Insure rs
Died, Senate Industrial Relations
Committee
Requires a workers‟ compensation insurer to file a writing with the Workers‟ Compensation
Appeals Board, signed by the insured employer, whenever the insured employer is represented
before the board by house counsel or a hearing representative.
SB 1785 Figueroa Data Collection
Chapter 318, Statutes of 2000
Allows the administrative director of the Division of Worker's Compensation to use specified
nationally recognized standards regarding the workers' compensation information system.
SB 1820 Burton Cancer Presumption
Chapter 887, Statutes of 2000
Extends the cancer presumption under Workers' Compensation law to peace officers employed
by the arson- investigation units of state and local fire departments and fire protection agencies
and fire prevention and suppression law enforcement personnel of state and local fire
departments and fire protection agencies.
SB 1959 Lewis Reinsurance
Chapter 892, Statutes of 2000
Requires an insurer or reinsurer desiring to reinsure any or all portions of workers' compensation
insurance to notify the Insurance Commissioner of its intent to reinsure, to maintain a bond prior
to such undertaking, as specified, and requires the Insurance Commissioner to establish a list of
all insurers and reinsurers authorized to undertake that reinsurance.
9
SB 1965 Brulte Workers’ Compe nsation
Information System
Died, Senate Industrial Relations
Committee
Provides that data collected by the Workers‟ Compensation Information System upon initial
receipt from a data provider, be processed in a manner that expunges from the data individually
identifiable information, as specified.
SB 1977 Peace Physician Assistants and Nurse
Practitione rs
Died, Assembly Insurance Committee
Permits a physician assistant or nurse practitioner to complete the Doctor's First Report of
Occupational Injury and to authorize temporary disability, if necessary, for up to three days.
SB 2081 Alarcón Los Angeles Unified School District.
Peace Officers
Chapter 929, Statutes of 2000
Extends leave-of-absence in lieu of temporary disability benefits (4850 time) for injured peace
officers of the Los Angeles Unified School District.
AB 224 Knox Los Angeles County Public Safety
Officers
Chapter 270, Statutes of 1999
Extends leave-of-absence in lieu of temporary disability benefits (4850 time) for injured peace
officers to Los Angeles County public safety officers.
AB 279 Wayne Penalties*
Chapter 553, Statutes of 1999
This bill increases the penalties for an employer who fails to provide workers' compensation
insurance from a misdemeanor punishable by up to six months in the county jail and/or a fine of
up to $1,000, to a misdemeanor punishable by up to one year in a county jail and/or a fine of up
to $10,000.
Note: This bill was not heard in the Senate Industrial Relations Committee.
10
AB 435 Corbett Medical Records*
Chapter 766, Statutes of 1999
Prohibits insurers, with certain exceptions, from disclosing to employers medical information
about an employee who has filed a workers‟ compensation claim.
Note: This bill was not heard in the Senate Industrial Relations Committee.
AB 539 Papan Cancer Presumption
Chapter 595, Statutes of 1999
Removes the requirement that a firefighter or peace officer prove a reasonable link between a
carcinogen and the disabling cancer before the cancer is presumed compensable.
AB 775 Calderon Medical Care
Chapter 124, Statutes of 1999
Requires utilization review or prior authorization services be available during specified
office hours, and require physician notice on contested, denied, or incomplete billings.
AB 776 Calderon Medical Evaluators
Chapter 54, Statutes of 2000
Revises qualifications for appointment and reappointment of qualified medical evaluators.
AB 1124 Havice Custody Assistants
Vetoed by the Governor
Extends the leave-of-absence in lieu temporary disability benefits (4850 time) for injured public
safety employees to injured custody assistants employed by the County of Los Angeles.
The Governor stated in his veto message, I believe that this extraordinary benefit should be
limited to sworn peace officers.
AB 1185 Gallegos Acupuncturists
In Senate, Held at Desk
Permits an acupuncturist to determine workers' compensation disability and requires that an
acupuncturist, appointed by the Senate Rules Committee, serve on the Industrial
Medical Council.
AB 1252 Wildman Podiatrists and Acupuncturists
Chapter 977, Statutes of 1999
Requires that a podiatrist, appointed by the Speaker of the Assembly, and an acupuncturist
appointed by the Senate Rules Committee, serve on the Industrial Medical Council.
11
AB 1309 Scott Self-Insured Public Employe rs*
Chapter 721, Statutes of 1999
As heard in committee, the bill allowed a self- insured public employer to discharge its workers'
compensation obligations by purchasing a special excess workers' compensation policy.
Note: This bill was subsequently amended to limit the application of SB 1237.
AB 1343 Floyd Attorney’s Fees
Vetoed by the Governor
Provides for payment of attorney fees at the outset of specified payment of benefits for
subsequent injuries.
The Governor stated in his veto message, “ Placing the priority in worker‟s compensation cases
on payment of attorneys‟ fees before payment to injured workers is neither a rational nor
appropriate expenditure of public funds.”
AB 1387 Flore z Probation Officers
Chapter 970, Statutes of 1999
Extends the public safety benefit of a leave-of-absence of up to one year in lieu of workers'
compensation temporary disability (4850 time) to probation officers, group counselors, juvenile
services officers or any other officer employed by a probation office, as specified.
AB 1468 Corbett Medical Records
Died, Senate Industrial
Relations Committee
Expands the medical information that may be disclosed to employers by third-party
administrators, insurers, and employees and agents specified by a self- insured employer to
administer the employer‟s workers‟ compensation claims. (See above)
AB 1883 Lowenthal Airport and Harbor and Port
Peace Officers
Chapter 920, Statutes of 2000
Extends the leave-of-absence in lieu of temporary disability benefits (4850 time) for injured
public safety employees to Los Angeles City airport law enforcement officers and harbor and
port police officers, wardens and special officers.
AB 2043 Maddox Meningitis Presumption
Chapter 883, Statutes of 2000
Creates a disputable presumption that meningitis developing or manifesting itself with respect to
specified public safety personnel arises out of and in the course of employment.
12
AB 2178 Knox Loss Control Se rvices*
Died, Senate Appropriations
Committee
Deletes the authority of the Director of Industrial Relations to prescribed standards for an
insurer‟s loss control consultation services and sets forth these standards in statute.
Establishes an ombudsperson to provide information and to respond to questions and complaints,
as specified.
Authorizes the Commission on Health and Safety and Workers‟ Compensation to establish a
worker occupational safety and health training and education program.
Note: This bill initially required the Workers' Compensation Appeals Board (WCAB) to include
at least one member from organized labor.
AB 2297 Calderon Renewal Notice Require ments.
Chapter 2297, Statutes of 2000
Revises workers' compensation policyholder renewal notice requirements.
13
WAGES AND HOURS
***
LABOR STANDARDS
Background
Wages and Hours.
The wages, hours, and working conditions of private sector employees in California are
governed by provisions of the Labor Code and wage orders (i.e. regulations) promulgated by the
Industrial Welfare Commission (IWC).
The California Constitution empowers the Legislature to provide for minimum wages and the
general welfare of employees and for those purposes may confer on a commission legislative,
executive and judicial powers. The Legislature has delegated these powers to the Industrial
Welfare Commission.
These laws and wage orders are enforced by the Chief of the Division of Labor Standards
Enforcement, also known as the Labor Commissioner. In addition, the Labor Commissioner
determines and collects unpaid wages, licenses farm labor contractors, industrial homewo rk
firms, and talent agencies, registers garment manufacturers, and performs field enforcement
relating to unlicensed contractors and cash pay.
On April 11, 1997, the IWC voted to amend five wage orders (there are fifteen in all) covering
the following industry or occupational groups: Manufacturing; Professional, Technical, Clerical,
Mechanical and similar occupations; Public Housekeeping industry; Mercantile industry; and,
Transportation industry. The amendments eliminated the eight-hour day and expressly provided
that "No overtime pay shall be required for hours worked in excess of any daily number." The
amendments also deleted alternative workweek provisions. The IWC announced that the
amendments would make California‟s workweek "more worker friend ly." These orders were
effective January 1, 1998.
The requirement to pay daily overtime was reinstated by the enactment of Assembly Bill No. 60
[(Knox) Ch. 134, Stats. 1999].
Assembly Bill No. 60 requires the payment of daily overtime compensation at a rate of one and
one half times the regular rate of pay after eight hours of daily work and 40 hours of weekly
work; at a rate of twice the regular rate of pay after 12 hours of daily work and after eight hours
of work on the seventh day of any workweek. In addition, overtime is paid at the rate of 1 1/2
times the regular rate of pay for the first 8 hours worked on the seventh consecutive workday in
any workweek, without regard to the total number of hours worked in the previous 6 days.
Overtime is paid at the rate of double the regular rate of pay for every hour worked after the
completion of 8 hours worked on the seventh consecutive workday in any workweek.
14
The bill establishes a procedure for an employer to propose an alternative workweek schedule,
which may be approved by a 2/3 vote of affected employees. An alternative workweek schedule
established pursuant to this procedure could allow up to 10 hours of daily work before overtime
compensation is required. The IWC is required to adopt regulations governing the procedures
for the adoption, repeal, and implementation of alternative workweek schedules. The above
provisions relating to overtime and alternative workweeks does not apply to any person
employed in an agricultural occupation, as defined, or employees covered by a collective
bargaining agreement. In addition to the above exceptions, the Chief of the Division of Labor
Standards Enforcement (DLSE) may, when hardship may result, exempt any employer or
employees from the provisions relating to days of rest. Agricultural employees may work up to
ten hours in one day and up to six days in one workweek with out the payment of overtime.
AB 60 nullifies alternative workweek schedules adopted pursuant to five wage orders amended
effective January 1, 1998 (1- Manufacturing industry; 4 - Professional, Technical, Clerical,
Mechanical and similar occupations; 5 - Public Housekeeping industry; 7 - Mercantile industry;
9 - Transportation industry) except as provided. An employer cannot reduce an employee's
regular rate of hourly pay as a result of the adoption, repeal, or nullification of an alternative
workweek schedule.
Employers in the health care industry retain until July 1, 2000, an alternative workweek schedule
with workdays up to 12 hours without overtime compensation, provided such schedules were
approved by employee elections pursuant to wage orders 4 or 5 in effect prior to 1998.
Within a workweek, an employee may, based on a specific written request, with the consent of
an employer, take time off for a personal obligation, and then make up the lost time on other
days within the same workweek without payment of daily overtime compensation for the extra
hours worked on the makeup day(s). The bill limits the daily makeup-time to 11 hours per day.
An employer is prohibited from encouraging or soliciting such a request.
The IWC is authorized to exempt "administrative, executive, or professional employees” from
overtime premium pay requirements. However, no person shall be considered to be employed in
an administrative, executive, or professional capacity unless the person is primarily engaged in
the duties which meet the test of the exemption and earns a monthly salary equivalent to no less
than two times the state minimum wage for full- time employment.
The IWC is also authorized to review, retain or eliminate any exemptions from any hours of
work provision in a valid work order in effect prior to 1997. The IWC may, until January 1,
2004, establish additional exemptions to hours of work requirements where it finds that hours or
conditions of labor may be prejudicial to the health or welfare of employees in any occupation,
trade or industry.
The bill sunsets, effective July 1, 2000, specific statutory provisions governing daily and weekly
overtime requirements for employees of a ski establishment (i.e., no daily overtime; weekly
overtime after 56 hours); a licensed commercial passenger fishing boat (i.e., no daily or weekly
overtime); a licensed hospital (i.e., daily overtime after 12 hours); and a stable (i.e., daily
overtime after 10 hours; weekly overtime after 56 hours). The IWC, prior to July 1, 2000, is
15
authorized to conduct a review, and then adopt regulations regarding overtime in these
industries. Also requires IWC to review wage and hour issues with respect to licensed
pharmacists and outside salespersons.
For the first time, employees working in on-site construction, drilling, logging, and mining of
non- metallic minerals were covered by the provisions of AB 60.
Employment Discrimination.
The Department of Fair Employment and Housing (DFEH) is charged with enforcing the Fair
Employment and Housing Act. This law provides protection from harassment or discrimination
in employment because of Age (40 and over), Ancestry, Color, Creed, Denial of Family and
Medical Leave (FML), Denial of Pregnancy Disability Leave (PDL), Disability (mental and
physical) including HIV and AIDS, Marital Status, Medical Condition (cancer and genetic
characteristics), National Origin, Race, Religion, Sex, and Sexual Orientation.
PDL requires employers to provide leave of up to four months to employees disabled
because of pregnancy childbirth, or related medical condition.
FML requires employers of 50 or more persons to allow eligible employees to take up to
12 weeks leave in a 12- month period for the birth of a child, the placement of a child
for adoption or foster care, for an employee‟s own serious health condition, or to care for a
parent, spouse, or child with a serious health condition.
The law provides for a variety of remedies, which may include: hiring, back pay, promotion,
reinstatement, cease and desist orders, damages for emotional distress, reasonable attorneys fees
and costs, expert witness fees, administrative fines and court ordered punitive damages.
DFEH has jurisdiction over both private and public entities operating within the State of
California, including corporate entities, private sector contracts granted by the State of
California, and all State departments and local governments.
DFEH receives and investigates discrimination complaints in its fifteen district offices
throughout the State. Thirteen offices handle employment, public accommodations and
hate violence cases and two handle housing cases.
Persons who believe they have experienced employment discrimination may file a DFEH
complaint. Complaints must be filed within one year from the date of the alleged discrimination.
Persons wishing to file a lawsuit directly in court must obtain a "right-to-sue" from DFEH.
16
Significant Legislation
Assembly Bill No. 60 (Knox), as outlined above, established the basic framework for the
payment of daily overtime.
Support and Opposition.
The bill finds and declares the necessity for its enactment, as follows: The eight- hour workday is
the mainstay of protection for California‟s working people, and has been for over 80 years. In
1911, California enacted the first daily overtime law setting the eight- hour daily standard, long
before the federal government enacted overtime protections for workers. Without the eight-hour
limitation, many employers would lengthen the workday to 12 or more hours, resulting in
extreme fatigue and stress to workers. Ending daily overtime would result in a substantial pay
cut for California workers who currently receive daily overtime. Numerous studies have linked
long work hours to increased rates of accident and injury. Family life suffers when either or both
parents are kept away from home for an extended period of time on a daily basis.
Opponents generally argue that relief from existing overtime rules as provided in the amended
work orders gives them the flexibility to control their production schedules.
Employers should be able to work employees 10 or 12 hours a day, without the penalty of
overtime if competitive forces necessitate such work schedules.
Former IWC orders were too restrictive and did contain flexible work schedules. This bill is
more restrictive than the former IWC orders. The alternative workweek process is too
cumbersome. Employees need more flexibility to respond to today's work and life needs.
California should conform to federal requirements in order to allow California business to
compete with other states. This bill sets California even farther apart from overtime rules in
other states.
Hospitals and other industries, which have adopted 12-hour day schedules, argue that the cost of
maintaining this schedule while paying overtime after eight hours (or 10 hours in the case of an
alternative work schedule) would be prohibitive. The ski industry, and certain other industries,
argue that conditions of employment in their industry is unique and justify a continuing
exemption from daily overtime requirements.
Senate Bill No. 88 (Sher) provides that a professional employee in the computer software field
shall be exempt from the requirement of premium overtime pay if the employee is primarily
engaged in specified duties, the employee is highly skilled, as specified, and the employee's
hourly rate of pay is not less than $41, to be adjusted annually.
In addition, a certified nurse midwife, a certified nurse anesthetist, and a certified nurse
practitioner, who is primarily engaged in performing duties for which certification is required, as
specified, may be exempted from coverage under specified provisions of wage orders of the
Industrial Welfare Commission (IWC). This provision does not exempt such employees from
17
meeting requirements established for executive, administrative, and professional employee
exemptions.
Finally, the bill provides that the authority of IWC to establish exemptions from overtime
compensation for executive, administrative, and professional employees applies only to an
employee who customarily and regularly exercises discretion and independent judgment in
performing the duties which meet the test of the exemption.
This measure had no registered opposition and was signed by the Governor.
Industrial Welfare Commission Actions
The IWC initially implemented AB 60 by adoption of Interim Wage Order - 2000, effective
March 1, 2000. Of particular importance, the Statement of Basis for this order stated that since
AB 60 is legislation of general application, the IWC finds that the 8- hour workday applies to all
California workers, including those in any industry or occupation previously not covered, unless
they are specifically exempted by AB 60 or otherwise exempted by governing law. The language
adopted by the IWC explicitly states that employee work activities relating to on-site
construction, oil drilling, logging, and mining (except the mining of metals and metallic ores
covered by the Labor Code) are subject to the Interim Wage Order.
In addition, The IWC received correspondence from several registered nurses regarding the loss
of their exempt status as professional employees. Prior to AB 60, registered nurses were exempt
if they individually qualified as an administrative, executive, or professional employee. Under
AB 60, registered nurses could only be exempt executive or administrative employees.
Advanced practice nurses, which is an umbrella term that includes nurse practitioners, clinical
nurse specialists, certified registered nurse anesthetists, and certified nurse-midwives, submitted
testimony advocating the continuation of their exempt status as professional employees. They
noted, among other things, their advanced degrees in specialized areas, special certification by
the State of California, 24-hour responsibility for patients, independent management duties, and
the need for continuity of patient care as justification for exempt status. Health care
organizations and health care employees both submitted comments and correspondence urging
an exemption for advanced practice nurses. Labor organizations representing advanced practice
nurses testified that they should be treated no different than other nurses.
After reviewing the testimony, correspondence, and materials relating to advance practice nurses,
the IWC concluded that it did not wish to act on such an exemption. Subsequently, this
exemption was dealt with in SB 88 (see above).
On June 30, 2000, the IWC adopted amendments to the wage orders regarding alternative
workweek schedules in the healthcare industry, meals and rest periods, personal attendants and
residents managers, commercial passenger fishing, ski establishments, and executive,
administrative and professional duties. The IWC did not modify the application of daily and
weekly overtime for stable employees. A full account of these actions may be viewed at the IWC
web site, www.dir.ca.gov/iwc.
18
On August 18, 2000, the IWC approved three hearings to hear public comment on proposed
regulations for construction, drilling, logging and mining industries and the minimum wage.
The minimum wage proposal would increase the minimum wage in California by fifty (50) cents
for each of the next two years, such that on and after January 1, 2001 the minimum wage shall be
no less than $6.25 per hour, and on and after January 1, 2002 the minimum wage shall be no less
than $6.75 per hour.
In addition, the hearings will examine eliminating the following non-statutory full and partial
exemptions from the minimum wage for sheepherders, state and local government employees,
full-time carnival ride operators, professional actors, personal attendants in private homes,
student nurses, and minors paid not less than 85% of the minimum wage rounded to the nearest
nickel; and retain the following non-statutory full and partial exemptions for administrative,
executive and professional employees, the parents, spouse, or children of the employer, and
learners paid not less than 85% of the minimum wage rounded to the nearest nickel during their
first one hundred sixty (160) hours of employment in occupations in which they have no
previous similar or related experience provided, however, that no such learner shall be paid less
than $5.75 per hour.
_____________________________ 1999 - 2000 LEGISLATION _______________________
SB 56 Solis Court Appearances
Chapter 340, Statutes of 1999
Allows victims of domestic violence to take time off of work to appear in court to obtain a civil
restraining order or other legal protection necessary to ensure their health and safety.
SB 88 Sher Overtime Exemption*
Chapter 492, Statutes of 2000
Exempts specified professional employees in the computer software and nursing professions,
from the requirement of premium overtime pay.
Note: This bill as introduced related to local workforce investment boards.
SB 118 Hayden Family Care and Medical Leave
Vetoed by the Governor
Provides that an employee may take family care and medical leave to care for a grandparent or
sibling, or domestic partner, as defined, as well as an adult child, who has a serious hea lth
condition or to care for an individual who depends on the employee for immediate care and
support, who shares a common residence with the employee and who has a serious health
condition.
19
The governor stated in his veto message: “This measure, while well- intentioned, extends the
right (to take time off) far beyond what any other state has permitted to a relationship outside the
family - specifically, to individuals who live together to share expenses if one of those
individuals subsequently becomes seriously ill.”
SB 146 Solis Mandatory Overtime: Nurses*
Died, Assembly Labor and
Employme nt Committee
Prohibits compulsory overtime for a registered nurse after the conclusion of the nurse's
applicable daily work schedule and after 40 hours in a workweek, except during a state of
emergency.
Note: This bill as introduced related to job training.
SB 200 O’Connell Railroad train Cre ws
Died, Assembly Floor
Requires that all train crews must operate with at least two persons, one of whom must be a
"railroad trainman." Allows the Public Utilities Commission, consistent with federal law, to
grant an exemption to the minimum personnel requirement if the Commission determines that
the exemption will not endanger life or property.
SB 211 Solis Employme nt Discrimination
Chapter 797, Statutes of 1999
Provides that the employer identified on the Federal W-2 form is the employer for the purposes
of enforcement of the California Fair Employment and Housing Act.
SB 319 Burton Unde rground Economy
Chapter 306, Statutes of 1999
Extends the sunset provision of the multi-agency Joint Enforcement Strike Force on the
Underground Economy from January 1, 2000 to January 1, 2006.
SB 460 Hayden Garment Manufacturing
Vetoed by the Governor
Requires that apparel which is manufactured in California and procured by the state shall
be produced by registered contractors and manufacturers. The bill establishes a task force to
study the use of public funds in the purchase of manufactured good under sweatshop conditions.
Provides that there is a rebuttable presumption that an employee's claim of hours worked is valid
in an action for nonpayment of wages, if the employer fails to keep accurate and
contemporaneous records, as specified, or fails to provide required itemized wage deduction
statements.
20
The Governor stated in his veto message, “Existing law already provides for a remedy for those
individuals who claim nonpayment of wages for hours worked. . . . this bill could have a
significant adverse impact on small businesses that would not have the resources necessary to
legally rebut such a claim.“
SB 651 Burton Pharmacists
Chapter 2190, Statutes of 1999
Provides that a person employed in the practice of pharmacy is not exempt from coverage under
any provision of the wage orders of the Industrial Welfare Commission, unless he or she
individually meets the criteria established for exemption as executive or administrative
employees.
SB 945 Vasconcellos AmeriCorps
Chapter 365, Statutes of 2000
Exempts individuals participating in a national service program, such as AmeriCorps, from
Labor Code provisions relating to wages, hours, and working conditions.
SB 980 Lewis Wage Bonds
Died, Senate Industrial Relations
Committee
Requires that a claim for wages continues as a penalty where the bonding company or surety
intentionally, rather than willfully, fails to pay on the bond.
SB 1000 Burton Daily Overtime
Died, Senate Industrial Relations
Committee
Establishes a statutory framework for daily overtime compensation.
SB 1097 Hayden Car Washing and Polishing
Vetoed by the Governor
Requires persons who employ others in car washing and polishing, as defined, to register with
the Labor Commissioner, to obtain a surety bond, and meet other specified requirements.
The Governor stated in his veto message, “I am vetoing this bill because it would impose
additional operational costs on the Department of Industrial Relations that are not budgeted in
the 2000 Budget Act. Additionally, I do not believe that the need for car washing and polishing
business to register with the Labor Commissioner has been demonstrated.”
21
SB 1149 Hayden Family Care and Medical Leave*
Vetoed by the Governor
This bill is essentially the same as SB 118 and provides that an employee may take family care
and medical leave to care for a grandparent or sibling, or domestic partner, as defined, as well as
an adult child, who has a serious health condition, but does not include the provision relating to
caring for an individual who depends on the employee for immediate care and support, who
shares a common residence with the employee and who has a serious health condition.
The Governor stated in his veto message, “As I said when I vetoed an earlier bill by this author
[i.e. SB 118], I would be pleased to consider reasonable changes to the Domestic Partner Act
next year.”
Note: This measure initially was authored by Senator Speier and expanded coverage of the
California Family Rights Act (CFRA) by covering employers who employ 20 or more persons
rather than 50 or more persons as provided under current law. Allowed CFRA leave for the care
of an adult child. Required employers to provide to employees specified information about their
leave policies, CFRA, and Pregnancy Disability Leave.
SB 1202 Karnette Los Angeles County Metropolitan
Transportation Authority
Died, Senate Industrial Relations
Committee
With respect to exiting law which requires the Director of Industrial Relations, in resolving
questions of labor organization representation regarding the Los Angeles County Metropolitan
Transportation Authority, to apply the relevant federal law and administrative practice. This bill
requires that the definition of the term „„employee‟‟ be construed to include, in addition to those
individuals included in the definition of that term in the federal act, an individual employed as a
supervisor or an individual employed as a manager.
SB 1353 Rainey Reserve Peace Officers
Chapter 701, statutes of 2000
Protects volunteer peace officers from discharge or discrimination by employers for taking time
off work to perform emergency duty as a reserve peace officer or emergency rescue
personnel.
SB 1358 Solis Industrial Welfare Commission
Died, Assembly Labor and
Employme nt Committee
Requires that the executive officer of the Industrial Welfare Commission (IWC) be appointed by
the Governor.
22
SB 1567 Hayden Sick Leave
Died, Senate Industrial Relations
Committee
Requires employers that provide a sick leave benefit to extend its usage to permit an employee to
use sick leave to attend to the illness of a sibling, domestic partner or grandparent. Requires
employers with 5 or more employees that pay less than a living wage to provide a paid sick leave
policy.
SB 1822 Bowen Employee Electronic Mail
Vetoed by the Governor
This bill prohibits an employer from monitoring employee electronic mail (e- mail) or other
computer records without first advising the employee of the employer's workplace privacy and
monitoring policy.
The Governor stated in his veto message, “ I start from the common-sense presumption that
employees in today‟s wired economy understand that computers provided for business purposes
are company property and that their use maybe monitored and controlled.
“This bill places unnecessary and complicating obligations on employers and may likely to lead
to litigation by affected employees over whether the required notice was provided and whether it
was read and understood by the employee.
“I support reasonable privacy protections for employees in the workplace, but not at the price of
undue regulatory burdens and potential legal exposure to businesses for doing what any
employee should assume is the employer‟s right when they accept employment. For these
reasons, I am vetoing this bill.”
SB 1854 Alarcón Lie Detectors
Vetoed by the Governor
Narrows the exemption in existing law with respect to the administration of lie detector tests to
state employment to public safety employees and requires that an employer- administered lie
detector test be videotaped.
The Governor stated in his veto message,” The expense to the State and other employers of
purchasing all of the necessary equipment and showing each applicant their videotape could be
considerable. Therefore the costs of purchasing and maintaining videotaping equipment, maybe
an unnecessary expense given the insignificant benefits to the applicant.”
23
SB 1877 Alarcón Displaced Janitors
Vetoed by the Governor
Requires a contractor who employs 25 or more workers and who enters into a contract for
janitorial and building maintenance services at a job site to retain the employees of the former
contractor providing such services at the job site during a 90-day transition employment period.
The Governor stated in his veto message, “I realize job stability is sometimes the only
compensation for low wages and janitors who do some of the most difficult work there is, but,
this bill sets a troubling precedent in regulating private sector employment relationships. In
general I believe that the employment relationships between the contractor and janitorial
employees should be resolved between the affected parties. However, I might be open to a much
more limited version of the bill.”
AB 60 Knox Daily Overtime
Chapter 134, Statutes of 1999
Establishes a statutory framework for daily overtime compensation (see above).
AB 96 Shelley Industrial Welfare Commission*
Subjects an employer to a civil penalty for willfully failing to maintain accurate and complete
records required by any applicable wage order of the Industrial Welfare Commission, as
specified.
Note: This bill was subsequently amended to create a new local membership classification
designated "local sheriff" to apply to specified employees of the sheriff's office in San Francisco
County, for purposes of the Public Employees‟ Retirement System.
AB 109 Knox Sick Leave
Chapter 164, Statutes of 1999
Requires an employer who provides sick leave for employees to permit an employee to use the
sick leave to attend to the illness of a child, parent, or spouse of the employee.
AB 418 Firebaugh Mandatory Overtime
Died, Senate Industrial Relations
Committee
Requires the Labor Commissioner to report to the Legislature on or before July 1, 2000, on the
effect of mandatory overtime on workers, particularly with regard to those in the
telecommunications industry.
24
AB 433 Washington Firefighte rs
Died, Senate Public Safety Committee
Provides that no firefighter employment contract shall include a requirement that a firefighter
reimburse the public employer for training expenses.
AB 613 Wildman Janitorial and Building Maintenance
Chapter 299, Statutes of 1999
Includes the janitorial and building maintenance industry in state enforcement
efforts of tax and labor laws.
AB 633 Steinberg Garment Manufacturers
Chapter 633, Statutes of 1999
Authorizes DIR, through its regulatory process, to further refine, and possibly expand the
definitional scope of garment manufacturer to reflect current industry practices.
Defines a garment contractor as an entity engaged in garment manufacturing on behalf of a
manufacturer, or acts as a subcontractor of a manufacturer or other contractor.
Permits the confiscation of manufacturing equipment (e.g., sewing mac hines) of those
manufacturers who had subsequently violated labor laws after having their manufactured apparel
confiscated by the Labor Commissioner in the previous five years for labor violations.
Reduces the maximum amount of renewal registration fees for contractors to $1,000, retaining
the maximum of manufacturers of $2,500.
AB 884 Kuehl Advance-fee Talent Services
Chapter 884, Statutes of 1999
Regulates advance-fee talent services, including the contents of contracts with artists, and the
posting of surety bond.
AB 1019 Strickland Volunteer Construction Services
Chapter 195, Statutes of 1999
Requires a review by the Labor Commissioner of child labor laws relating to minors
volunteering for construction work by non-profit organizations.
AB 1268 Kuehl Labor Disputes
Chapter 616, Statutes of 1999
Provides that no officer or member of any association or organization, and no association or
organization, participating or interested in a labor dispute shall be held respo nsible or liable for
the unlawful acts of individual officers, members, or agents except upon clear proof of actual
25
participation in or actual authorization of those acts. Revises the procedures and standards under
which a court may issue an injunction or a temporary restraining order in a case involving
a labor dispute.
AB 1338 Reyes Farm labor Contractors
Chapter 917, Statutes of 2000
Increases farm labor contractor wage surety bonds and license fees, provide remedial education
for contractors, and further enhances examination and enforcement procedures.
AB 1532 Flore z Farm labor Contractors
Died, Senate Industrial
Relations Committee
Requires the Department of Industrial Relations to create a directory of farm labor contractors.
AB 1652 Steinberg Labor Law Violations
Vetoed by the Governor
Provides that all employers, not only an employer in the building and construction industry, who
pays an employee wages or fringe benefits with an instrument drawn on insufficient funds, those
wages or fringe benefits continue as a penalty until they are paid or an action is commenced.
Revises penalties for failure to maintain specified payroll records.
The Governor stated in his veto message, “This legislation, while laudable in its intent,
duplicates many existing enforcement efforts and contains excessive penalties. This legislation,
as drafted, is overly broad.”
AB 1654 Steinberg Department of Industrial Relations:
Bilingual Employees *
Requires a report to the Legislature concerning implementation of existing law related to the
hiring of bilingual staff.
Note: This bill was subsequently amended to relate to mentally disordered offenders.
AB 1856 Kuehl Harrassment
Chapter 1047, Statutes of 2000
Specifies that an employee can be held personally liable under the Fair Housing and
Employment Act (FEHA) for unlawful harassment that is perpetrated by the employee.
26
AB 2357 Honda Domestic Violence
Chapter 487, Statutes of 2000
Prohibits employers with 25 or more employees from discriminating and retaliating against
employees who are victims of domestic violence and must take time off from work for specified
reasons.
AB 2410 Machado State Employees: Payment of wages
Chapter 885, Statutes of 2000
Makes various changes in the law regarding the payment of wages to state employees.
AB 2436 Wildman Building Maintenance Services
Died, Senate Industrial Relations
Committee
Prohibits any person from acting as a building maintenance service contractor, as defined, unless
currently licensed by the Labor Commissioner.
AB 2509 Steinberg Employme nt Law Violations
Chapter 876, Statutes of 2000
Streamlines and alters many enforcement and administrative procedures of wage and hour laws
before the Labor Commissioner and the courts, increases civil penalties and damages for
violations.
AB 2535 Olle r Volunteer Firefighters
Chapter 361, Statutes of 2000
Allows volunteer firefighters, who work for employers with 50 or more employees, to take
unpaid leave of up to 14 days per year for fire or law enforcement training. This bill also
provides that any employee who is discriminated against for taking leave for these purposes,
shall be entitled to reinstatement and reimbursement for lost wages.
AB 2707 Flore z Farm Labor Contractors
Chapter 877, Statutes of 2000
Requires the Department of Industrial Relations to open an office in Fresno to administer a nd
enforce licensing and supervision of farm labor contractors. This measure also requires this
office to perform activities including testing, licensing, and processing complaints against farm
labor contractors or their agents.
27
AB 2760 Wesson Backstretch Workers*
Vetoed by the Governor
States findings and declarations of the Legislature regarding the employment rights of racetrack
backstretch employees, and directs the California Horse Racing Board to oversee the conduct of
a union and multi-employer collective bargaining agent recognition procedure subject to
specified conditions and procedures, provides for resultant labor agreements to be binding on the
parties, and establishes reasonable rules to regulate the time, place, and manner of
representational meetings within the racetrack enclosure.
Authorizes individual trainers to opt out of the multi-employer bargaining process, subject to
specified conditions, and require each trainer to keep accurate payroll records for all of his or her
employees, subject to audit by the Labor Commissioner, as specified, containing specified
information
The Governor stated in his veto message, “This bill would amend current statute to allow
Internet and telephone wagering on horse races and add various provisions to govern those
activities. The bill would also provide new protections for racetrack "backstretch" employees
including badly needed standards for living conditions such as housing, establishment of a health
and welfare fund, and the right to organize for collective bargaining purposes.
“If this bill contained only the backstretch provisions, I would sign it. However, I cannot support
the provisions lifting the State ban on Internet and telephone wagering.”
Note: This bill was not heard by the Senate Industrial Relations Committee.
AB 2857 Steinberg Wage and Hour Remedies
Died, Assembly Floor
Exempts civil court appeals of a wage claim decision of the Labor Commissioner from the
requirement of pre-trial judicial arbitration. The bill also deals with subpoenas and relates to
mail notices, liquidated damages as it relates to unpaid minimum wages and the posting of
violation notices.
AB 2860 Kuehl Talent Se rvices
Chapter 878, Statutes of 2000
Narrows the definition of an advance-fee talent service.
AB 2862 Romero Farm Labor Contractors*
Vetoed by the Governor
Establishes a farm labor contractors license verification unit, provides for penalties for failure to
pay wages, as specified, and establishes a Farm Labor Contractor License Verification Unit.
28
The Governor stated in his veto message, “ . . . this legislation would impose criminal penalties
for wage violations on one industry and one industry only. Whereas other industries in this state
who commit wage and hour violations are subject to civil penalties – even when the violations
are more serious than those addressed in this bill.
“I will be happy to sign legislation next year that incorporates all of the provisions in this bill,
but with stiff civil penalties in place of criminal sanctions for employers or farm contractors who
knowingly violate the law.”
Note: As introduced, this bill was authored by the Assembly Labor and Employment Committee
and required the awarding body to withhold the interest due on unpaid wages, in addition to
wage sums and applicable penalties already required to be withheld.
29
OCCUPATIONAL SAFETY AND HEALTH
Background
The State of California has been actively involved in workplace safety and health since 1911 and
administers its own workplace safety and health program according to provisions of the Federal
Occupational Safety and Health Act of 1970. The federal act permits a state to manage its own
occupational safety and health program (a so-called “state plan” state) if it meets certain federal
requirements. Among other things, California standards must be at least as effective as all
federal standards for which federal standards have been promulgated.
The California program, known as Cal-OSHA, was approved by federal OSHA in 1973.
Cal-OSHA was praised by President Reagan as the best worker safety and health program in the
country.
Cal-OSHA covers virtually all workers in the state, including those employed by state and local
governments. Cal-OSHA does not cover federal employees, offshore maritime workers, or
domestic service workers in private households. Cal-OSHA standards are contained in the
California Code of Regulations, Title 8, Industrial Relations.
Major units within Cal-OSHA include:
Division of Occupational Safety and Health (DOSH)--enforces worker safety and health
standards and regulations.
Cal-OSHA Consultation Service--offers free training and consultation to assist both employers
and their employees in complying with workplace safety and health regulations.
OSHA Standards Board--adopts, amends and repeals the standards and regulations.
OSHA Appeals Board--hears appeals regarding Cal-OSHA enforcement actions.
Some DOSH responsibilities are mandated by state law only and do not receive federal funding.
They include:
Certification of employers and consultants involved in asbestos-related work.
Issuing permits for operation of elevators and aerial passenger tramways.
Issuing permits for portable and permanent amusement rides and bungee jumping.
Inspecting mines, tanks and boilers.
Certification of loss control services of workers' compensation carriers.
30
Responding to complaints of smoking in an enclosed place of employment if the
employer has been found guilty of a third violation within the previous year.
Penalties
Civil and criminal penalties are assessed for violations of Cal-OSHA standards or orders. Most
penalty assessments can be adjusted to reflect the seriousness o f the violation and the safety
record of the employer.
-for a serious violation of a standard, a maximum civil penalty of $25,000;
-misdemeanor penalties (i.e., for knowledge or negligence) for a serious violation, up to one year
in jail, and/or a maximum of $15,000 for an individual and $150,000 for a corporation;
-for a willful violation, causing death or serious injury, a civil penalty of not less than $5,000 nor
more than $70,000;
-for a willful violation, causing death or permanent or prolonged impairment, a criminal
misdemeanor penalty, up to one year in jail and/or a maximum of $100,000 or, upon discretion
of the court, 16 months or 2 or 3 years in jail and a maximum fine of $250,000. If a corporation,
not more than $1.5 million. For a repeat conviction, up to 4 years in jail for an individual and
not less than $1 million or more than $3.5 million for a corporation.
-for failure to abate a serious hazard, not more than $15,000 each day until abatement achieved;
-public employers are subject to civil penalties for violating a safety standard.
Subsequent Violations: Civil Penalty Enhancements
-a subsequent violation may be considered a repeat violation if it occurs at a different
establishment as the previous violation.
Abatement of Hazard
-by Regulation, an employer‟s duty after the issuance of a citation to abate an unsafe condition is
stayed if the employer appeals the citation.
Admissible Evidence
-OSHA standards and orders may be used as evidence in criminal prosecution, but not citations
may be admitted into evidence in the same manner as other statutes and regulations.
Multi- Employer Responsibility
-by Regulation, citations may be issued, not only against the employer which exposed an
employee to a hazard, but also other responsible employers at a multiple employer worksite (e.g.
31
construction). Employers responsible for creating, controlling (by contract or practice), or
correcting the hazard may be cited regardless of whether their own employees were exposed.
Anti-Retaliation
-an employee complaint filed with the Labor Commissioner claiming retaliation for reporting
unsafe conditions or for refusal to work under such conditions must be filed within six months of
the occurrence.
Public Employers
-civil penalties may be assessed against public employers.
-permits a school district, county board of education, community college district, State
University, University of California, and related entities, to obtain a refund of a civil penalty,
with interest, if all conditions previously cited have been abated, other outstanding citations have
been abated, and if there has been no serious violation.
Significant Legislation
Assembly Bill No. 1127 (Steinbe rg), as described above increases civil and criminal penalties
for willful, serious, and repeat violations of Cal-OSHA standards and orders and revises civil
penalty enforcement procedures.
Support and Opposition
Supporters, including the Los Angeles District Attorney, The California District Attorney's
Association, Attorney General Bill Locker, and the California Labor Federation AFL-CIO,
state that under current law the willful violation of a safety standard causing the death or
permanent or prolonged injury of an employee is a crime, but can only be prosecuted as a
misdemeanor with a $70,000 maximum penalty. They argue that these penalties are inadequate
to deal with the worst offenders and are not comparable to laws that protect animals
and the environment.
Many of the previous opponents of this measure, including the Chamber of Commerce, which
led an opposition coalition to this bill, the California Retailers Association, the Motion Picture
Association of America, the Silicon Valley Manufacturers Group, and the Wine Institute have
withdrawn their opposition to this bill based on the Senate amendments. The Chamber has
stated that the bill now targets "the worst of the worst".
This bill was signed by the Governor.
Assembly Bill No. 850 (Torlakson) establishes the Permanent Amusement Ride Safety
Inspection Program, as follows:
1. Defines permanent amusement ride.
32
2. Requires annual inspection by DOSH as specified and a written declaration by a qualified
inspector, who has been approved by DIR, that a ride meets established safety standards.
3. Permits DOSH to fix and collect fees for actual cost of the program.
4. Requires ride owners to maintain liability insurance, or the equivalent, as specified.
5. Requires permanent amusement ride operators to ensure that employees are trained in the
safe operation and maintenance of rides, pursuant to specified standards.
6. Permits DOSH to shut down an unsafe ride until the condition is corrected.
7. Requires the California Occupational Safety and Health Standards Board to adopt rules and
regulations for the safe installation, repair, maintenance, use, operation and inspection of
permanent amusement rides.
8. Requires the operator to keep specified records regarding accidents which cause injury and
specifies that if a fatality or serious injury is caused by the failure, malfunction, or operation
of an amusement ride, the equipment or conditions that caused the accident shall be
preserved for the purpose of investigation by the division.
9. Requires operators to notify the state immediately by telephone of any accident resulting in
death or serious injury to the patron. This notification will trigger an investigation by DOSH.
10. Provides for fines and penalties for violations.
11. Specifies that the provisions related to annual division inspections do not apply to permanent
amusement rides that are located within a county or other political subdivision of the state
that, as of April 1, 1998, has adopted the provision of the 1994 Uniform Building Code
providing for the routine inspection of such rides.
Support and Opposition.
In support of this measure, the author notes that in August 1997, the California Research Bureau
(CRB) issued a report on Safety and Oversight of Amusement Rides in California.
CRB had been asked to determine how many people die or are injured each year as a result of
amusement rides. The report indicated that data on non- fatal injuries are difficult to obtain and
often do not exist. According to the report, the Consumer Products Safety Commission estimates
that 8,300 non- fatal injuries occurred on amusement rides in 1996, an increase from 7,500 the
prior year. They attributed 51 percent of these injuries to fixed site amusement rides.
Among its conclusions, the report determined that California leads the nation in amusement ride
deaths, 12 from 1973 through 1996. Of these 12 deaths, at least 10 occurred at permanent parks,
which the State does not regulate.
This bill was signed by the Governor.
33
_____________________________1999 - 2000 LEGISLATION ________________________
SB 508 Ortiz Community Health Care Workers
Vetoed by the Governor
Requires the Occupational Safety and Health Standards Board to adopt a standard to prote ct
community health care workers, as defined, from work-related violence.
The Governor stated in his veto message, “Available date on violence against health care
workers relate to those workers in hospitals and psychiatric facilities. There is no direct evidence
that violence against home health care workers is on the rise. Additionally, this bill would
potentially increase costs to employers and be duplicative of the existing requirements for the
development of injury and illness preventive programs under existing law.”
SB 973 Perata Permanent Amusement Rides
Died on Senate Inactive File
Provides for the permitting and inspection of permanent amusement rides.
SB 1523 Figueroa Pesticides
Died, Assembly Agriculture
Committee
Requires the posting of warning signs after an application of a pesticide when the requirement
for reentry interval is 24 hours or longer.
SB 1999 Karnette Crane Operators*
Provides that crane operator certification or licensure shall not be construed in any manner to
affect the liability of the construction crane operator.
Note: This bill was subsequently amended to relate to public works.
AB 184 Davis Material Safety Data Sheets
Chapter 366, Statutes of 1999
Provides for the electronic filing of Material Safety Data Sheets with Cal-OSHA.
AB 850 Torlakson Permanent Amusement Rides
Chapter 585, Statutes of 1999
Provides for the permitting and inspection of permanent amusement rides (see above).
34
AB 1127 Steinberg Penalties and Enforce ment
Chapter 615, Statutes of 1999
Increases civil and criminal penalties for willful, serious, and repeat violations of Cal-OSHA
standards and orders and revises civil penalty enforcement procedures (see above).
AB 1599 Torlakson Enforce ment*
Chapter 598, Statutes of 2000
Permits Cal-OSHA to contract for legal services for enforcement.
Note: This bill was not heard in the Senate Industrial Relations Committee.
AB 1655 Hertzberg Variances/Targeted Inspections
Chapter 469, Statutes of 1999
Requires the Occupational Safety and Health Standards Board to report to the Legislature on the
nature and extent of investigations conducted by the Board pursuant to the procedure for granting
a variance from a safety and health standard or order.
Deletes the "sunset" of the authorization to levy and collect assessments from employers to fund
the Cal-OSHA targeted inspection and consultation program.
35
PUBLIC WORKS
AND
PREVAILING WAGES
Background
Existing law requires, except for public works projects of one thousand dollars ($1,000) or less,
the payment of not less than the general prevailing rate of per diem wages for work of a similar
character in the locality in which the public work is performed, and not less than the general
prevailing rate of per diem wages for holiday and overtime work to be paid to all workers
employed on public works.
The Director of the Department of Industrial Relations (DIR) is required to determine t he general
prevailing rate of per diem wages in accordance with specified standards.
An awarding body shall not require the payment of the general prevailing rate of per diem wages
or the general prevailing rate of per diem wages for holiday and overtime work for any public
works project of twenty- five thousand dollars ($25,000) or less when the project is for
construction work, or for any public works project of fifteen thousand dollars ($15,000) or less
when the project is for alteration, demolition, repair, or maintenance work, if the awarding body
elects to initiate and enforce a labor compliance program, as specified.
DIR regulations prior to 1997 (and adopted in 1956), defined the general prevailing rate of per
diem wages as the modal rate, which is the single rate paid to the greatest number of workers
within the applicable craft. In January 1977, DIR adopted administrative regulations to
implement a weighted-average methodology.
In recent years, the payment of prevailing wages as been the subject of considerable controversy.
In 1995, the Legislature rejected legislation sponsored by DIR that would have changed the
method by which prevailing wage rates are calculated to a weighted average unless more than
half the workers within a classification are paid at a single rate, and would have eliminated
predetermined increases from the prevailing wage rate.
In 1996, the Legislature rejected an amendment to the Budget Bill proposing an appropriation to
DIR for the purpose of implementing a new, modified weighted average methodology for
calculating the prevailing wage.
The Governor's Budget for 1997-98 included a request for $1.3 million and 20 positions to
conduct wage surveys to implement the changes in methodology used to determine prevailing
wages. This request was denied.
36
Significant Legislation
Senate Bill No. 16 (Burton) specifies that the general prevailing rate of per diem wages is the
modal rate. This bill was signed by the Governor.
Support and Opposition.
Proponents, including the State Building and Construction Trades Council, sponsor of this bill,
argue that this measure simply codifies a practice in effect since 1956 in determining prevailing
wages. Proponents state that recent court decisions have proven that past DIR efforts to change
the calculation of prevailing wages had been illegal. The repeal of the modal rate determination
would have negatively impacted the wages of construction workers on public works projects and
undercut collective bargaining in the private sector by artificially forcing wages down due to
state action.
Opponents argue that use of the modal rate keeps the cost of construction of public work projects
higher than they would be under alternative methods. They also argue that the bill eliminates the
discretion of the Governor in the future to change prevailing wage rates.
_____________________________1999 - 2000 LEGISLATION ________________________
SB 16 Burton Modal Rate Determination
Chapter 30, Statutes of 1999
Specifies that the general prevailing rate of per diem wages is the modal rate (see above).
SB 1902 Morrow Wage Bonds
Died, Assembly Labor and
Employme nt Committee
Requires the Division of Labor Standards Enforcement of the Department of Industrial Relations
to notify in writing the surety of a wage bond on a public works project that a meritorious claim
for wages has been made.
SB 1999 Burton Definition of Public Works*
Chapter 881, Statutes of 2000
Specifies that architectural, engineering and inspection services, including land surveying,
construction management services and environmental services, as defined, are public works.
Note: As introduced, this bill related to crane operators.
37
AB 302 Floyd Refuse Removal
Chapter 220, Statutes of 1999
Includes local governmental agencies within the requirement to pay prevailing wages on public
works projects for the removal of refuse from the construction site.
AB 1395 Correa Complainant Confidentiality
Chapter 302, Statutes of 1999
Requires the Division of Labor Standards Enforcement to protect the confidentiality of any
employee who reports a violation regarding public works projects.
AB 1646 Steinberg Failure to Pay
Chapter 954, Statutes of 2000
Streamlines the procedures for review of a decision to withhold funds from a contractor due to
failure to pay. Revises the procedures for challenging a decision to withhold funds from a
contractor due to the contractor's failure to pay a prevailing wage on a public works contract.
AB 2088 Reyes Failure to Pay
Vetoed by the Governor
Requires the Division of Labor Standards Enforcement to commence an action to recover
penalties and other amounts determined by the Labor Commissioner to be due when the
contractor has not paid the prevailing wage not later than two years, instead of 180 days, after the
filing of a valid notice of completion or acceptance of the public work, whichever occurs later.
The Governor stated in his veto message, This bill would unnecessarily extend the time frame,
from 180 days to two years, in which the Labor Commissioner may file a suit to recover wages
and penalties. It is neither fair nor reasonable to expect a contractor to wait such a long period of
time before learning if the Labor Commissioner will file a court action.”
AB 2513 Shelley Debarment
Chapter 970, Statutes of 2000
Revises the standards for debarment of a contractor or subcontractor from participating in public
works projects following a determination that they have violated prevailing wage and related
laws. Expands the application of the debarment to include contractors or other entities in which
the debarred person has an interest.
AB 2557 Margett Payment Bonds
Chapter 760, Statutes of 2000
Increases the payment bond that must be posted by a general contractor on a public works project
to 100 percent of the total amount payable for contracts of $5 million or more.
38
AB 2783 Villaraigosa Payroll Records
Vetoed by the Governor
Permits joint labor- management committees access to certified payrolls on public works projects,
and permits committees to seek civil court action to remedy prevailing wage violations.
The Governor stated in his veto message, “ . . . the expressed Congress ional intent in enacting
legislation that authorized the establishment of joint labor- management committees was
to provide a forum in which the representatives of both management and labor could work
together cooperatively to ameliorate or eliminate mutual problems. The enforcement of labor law
does not appear to be a task that falls within the purview of joint labor- management committees.
“ This bill creates a quasi- law enforcement status for joint- labor management committees that is
intermediate between that afforded the general public and the State. The bill contains no
provisions that limit the uses to which joint labor management committees may put the personal
information with which they are entrusted. As provided by this bill, the release of persona l
information to a joint labor- management committee requires neither the knowledge nor the
consent of affected employees. Although the obvious intent of this legislation is that the
information be utilized solely for the purpose of detecting the underpayme nt of workers on
public works projects, joint labor- management committees are not bound to adhere to this goal,
and the privacy of the affected employees is in no way assured. This is not the case with the
public agencies charged with the enforcement of Ca lifornia‟s labor laws.”
39
UNEMPLOYMENT INSURANCE
And
STATE DISABILITY INSURANCE
Background
Unemployment Insurance (UI) is a nationwide program created to provide partial wage
replacement to unemployed workers while they conduct an active search for new wo rk.
Unemployment Insurance is a federal-state program, based on federal law, but executed through
state law. Employers finance the UI program by tax contributions. In California, the
Employment Development Department (EDD) administers the UI program according to
guidelines established by the UI Code and the California Code of Regulations, Title 22.
The UI program is financed by employers who pay unemployment taxes on up to $7,000 in
wages paid to each worker. The actual tax rate depends, in part, on the amount of benefits paid
to former employees (employer‟s experience rating).
The amount of benefits is based on the worker‟s earnings during the base period. The maximum
weekly benefit amount is $230 for 26 weeks. The minimum weekly amount is $40.
California State Disability Insurance (SDI) is a partial wage-replacement insurance plan for
California workers. The SDI program is State- mandated, and funded through employee payroll
deductions. SDI provides affordable, short-term benefits to eligible workers who suffer a loss of
wages when they are unable to work due to a non-work-related illness or injury, or a medically
disabling condition resulting from pregnancy or childbirth. The majority of California
employees, approximately 11 million workers, are covered by the SDI program. Some
employees are exempt from SDI; for example, railroad employees, some employees of non-profit
agencies, employees who claim religious exemptions, and most government employees.
SDI is financed through a payroll tax on employees. SDI benefits are calculated on 55% of wage
replacement with a minimum weekly benefit of $50 and a maximum weekly benefit amount of
$490 payable for a maximum of 52 weeks. During 1999-2000, 6,210,000 SDI claims were filed
and workers received a total of $1.9 billion in benefits. The average weekly benefit amount was
$247 and the average duration of the claim was 13 weeks.
Significant Legislation
Senate Bill No. 546 (Solis) increases the maximum weekly unemployment benefit amount, as
follows:
1) January 1, 2001, the wage replacement rate for lost wages is 45 percent with a maximum
weekly benefit of $300; indexes the maximum weekly benefit amount to 50 percent of the prior
year's average weekly wage or $300, whichever is greater.
40
2) January 1, 2002, the maximum benefit is $340 per week or 50 percent of the prior year‟s
average weekly wage, whichever is greater.
3) January 1, 2003, the maximum benefit is $380 per week or 50 percent of the prior year's
average weekly wage, whichever is greater.
Support and Opposition
The author introduced this bill at the request of the California Labor Federation, AFL-CIO, the
sponsor of the measure. The sponsor argues that this bill is needed because UI benefits have not
increased in this state since 1989 due to a series of gubernatorial vetoes, and that a change must
be made. Forty-one states have higher benefits.
The Federal Advisory Council on Unemployment Compensation estimates that states can
achieve a 50% replacement rate for most workers by setting the maximum weekly benefit equal
to 2/3 of the state's average weekly wage. In California this would mean a maximum benefit of
$429. At $230, the current maximum weekly benefit is too low, and is now the worst in the
nation, replacing only 24% of the average weekly wage lost. With respect to a worker‟s
eligibility for UI benefits, the high earning requirements and delays counting earnings toward
eligibility hinder a worker's ability to receive benefits.
Opponents argue that this measure's economic impact falls only on employers, not on workers or
on the state. Unless streamlining reforms are made to mitigate the drastic employer tax increase,
they must oppose the bill. Many businesses state in their opposition that the only way they could
pay for the increase would be to reduce the workforce, which is bad for workers and business.
They also point out that the preferential treatment given by this bill to unionized employees
locked out during a trade dispute is unfair to other workers not so affected.
This bill was vetoed by the Governor.
Senate Bill No. 656 (Solis) increases the maximum disability benefit from $336 to $490 per
week, making State Disability Insurance (SDI) benefits equal to weekly benefits for workers'
compensation temporary disability and indexes SDI levels to future workers' compensation
temporary disability increases.
The bill also requires the Employment Development Department to conduct a cost study,
reporting to the Legislature by July 1, 2000, on expanding the definition of "disabled" for the
purpose of qualifying for SDI benefits individuals on leave pursuant to the Family Rights Act
(FRA).
Support and Opposition
The author introduced this bill at the request of the California Labor Federation, AFL-CIO, the
sponsor of the measure. According to the sponsor, SDI benefits have historically been set at the
same level as workers' compensation temporary disability benefits (WCTD). Under the 1993
workers' compensation reform law, maximum WCTD benefits rose to $490 per week in January
41
1996. The sponsor makes the point that the disparity between SDI and WCTD encourages
"benefit shopping" between the two systems of compensation. The sponsor also believes that the
workers deserve an increase in benefits from a system that exists by their own taxes. The
sponsor argues that since the Disability Insurance Fund's solvency has returned in past years, and
the costs of increased benefits are offset by the corresponding increases in the taxable wage
ceiling, weekly benefits should be raised.
A FRA extension cost study is needed to assess the fiscal impact on the Disability Insurance
Fund. Most workers who are confronted with serious health problems in the family find they
cannot afford to take unpaid leave, or if they take it, the y do so at their financial peril due to the
prolonged illness of a family member.
The California Chamber of Commerce and the California Manufacturers Association (CMA)
oppose this bill because it increases SDI taxes on employees and employer‟s voluntary p lans and
would make the California program the most expensive in the nation. The Chamber raises
concerns about future reductions to the fund reserve and suggests the Legislature consider
reducing the duration of the benefits, noting that none of the other programs run past 26 weeks.
CMA points out that high wage earners would enjoy a benefit increase, but the vast majority of
SDI contributors would not.
The Governor signed this bill.
___________________________1999 - 2000 LEGISLATION __________________________
SB 546 Solis UI Weekly Benefit Amount
Vetoed by the Governor
Increases the maximum weekly unemployment insurance benefit amounts. (See above).
The Governor stated in his veto message, “The proposed increases in this bill would result in
costs to the UI Fund of $236.6 million in 2000-01, $641.6 million in 2001-02, and $864.9
million in 2002-03. Without raising the taxable wage base or tax rates, this increase in benefit
costs could place the solvency of the UI Fund at risk.
“California‟s robust economic prosperity is continuing, and California is experiencing it‟s lowest
unemployment rate in decades. For this reason and the reasons stated above I am returning this
bill without my signature.”
SB 656 Solis SDI Weekly Benefit Amount
Chapter 973, Statutes of 1999
Increases the maximum weekly SDI benefit amount from $336 to $490 per week, making State
Disability Insurance (SDI) benefits equal to weekly benefits for workers' compensation
temporary disability and indexing the SDI levels to future workers' compensation temporary
disability increases (see above).
42
SB 1011 Polanco Citrus Freeze UI Benefits
Chapter 558, Statutes of 1999
Increases by 26 weeks the maximum duration of unemployment insurance benefits for
employees proven to be directly affected by the citrus freeze which occurred on December 20 to
28, 1998.
SB 1152 Poochigian Definition of Employee
Died, Senate Industrial Relations
Committee
Specifies when an individual shall be deemed not to be an employee of the employer for
purposes of the payment of contributions with respect to unemployment insurance coverage and
the withholding of taxes on the wages of employees.
SB 1303 Solis Citrus Freeze UI Benefits
Chapter 9, Statutes of 1999
Increases from $25 to $200 the amount of earnings that an Unemployment Insurance recipient
may keep before benefits are reduced for individuals laid off as a direct result of freezing
weather in December, 1998, and whose continued unemployment is due to the freezing weather.
SB 1317 Solis Lock Outs*
Died, Assembly Appropriations
Committee
Clarifies that UI benefits may be granted to claimants who have been locked out of employment
by their employer during a bona fide collective bargaining dispute.
Note: As introduced, this bill permitted the Director of Employment Development to waive, for
good cause, penalties and interest resulting from underreporting disability insurance
contributions for the year 2000, as specified.
SB 1397 Solis Educational Employees
Died, Assembly Appropriations
Committee
Provides unemployment compensation insurance benefits for classified school employees.
AB 1844 Washington Pregnancy Disability Leave
Died, Senate Appropriations
Committee
Allows a pregnant woman to be eligible for disability benefits for a period of 10 weeks, as
specified.
43
AB 1904 Runner D. I. Fund Forecasts
Vetoed by the Governor
Requires the Director of Employment Development to issue a biennial forecast of the Disability
Fund, as specified.
The Governor stated in his veto message, “Because the bill requires two additional reports that
are duplicative of reports already prepared by the EDD and, therefore, unnecessary, and because
the formula by which the SDI contribution rate is calculated and determined is proscribed by
current law, I cannot support AB 1904.
AB 2477 Wiggins U.I. Base Earnings Period*
Vetoed by the governor
Provides an alternate base of earnings upon which unemployment insurance benefits can be
calculated.
The Governor stated in his veto message, “The proposed alternate base period would require
benefit eligibility to be determined on a claim-by-claim basis, which is a very labor intensive and
time consuming process to administer. As a result, this bill would impose additional and
substantial administrative costs on both the State and employers. Furthermore, the bill would
only provide a relatively small benefit increase to a limited number of workers. The small benefit
increase does not provide a reasonable justification for incurring substantial administrative costs
needed to administer the changes proposed by this legislation.”
Note: As introduced, this bill provided that at least one member of the Unemployment Insurance
Appeals Board be from organized labor.
AB 2815 Keuhl State Employees
Vetoed by the Governor
Allows employees of the State of California, the California Legislature and the California State
University to be covered by the State Disability Insurance program.
The Governor stated in his veto message, “To the best of my knowledge, this bill conveys no
new rights or benefits to employees. Whether or not this bill becomes law, employees have the
very same rights to negotiate at the bargaining table for these benefits.
44
JOB TRAINING
Background
California has 22 labor and employment programs, 13 administering departments and 10
advisory councils, which provide employment and training services to 6.7 million people at a
cost of $6 billion in both federal and state dollars.
No single entity is responsible for state workforce policy development or implementation.
California's employment and training programs were created between 1917 to 1993 to address
the needs of specific groups. The separately administered programs each operate under a
different set of rules. Moreover, many of these programs perform similar functions and target
overlapping client groups.
California's job training bodies include: a) The California Workforce Investment Board; b) The
California Occupational Information Coordinating Council; c) The State Council on Vocational
Education; d) The State Advisory Council on Refugee Assistance and Services; e) The California
Postsecondary Education Commission; f) The Commission on Aging; g) The Employment
Training Panel; h) The California Apprenticeship Council; i) The State Board of Education, The
Board of Governor's, California Community Colleges.
Workforce Preparation Programs in California
S tate Agency Program
Department of Aging Senior Community Service
Employment
California Conservation Corps Training and Work Programs
California Youth Authority Youth Employment
Department of Corrections Inmate Employment
Employment Development Department (EDD) Workforce Investment
Job Agent Program
Job Service
Intensive Services Programs
Special Veterans Services
Wagner-Peyser 10% Project
Employment Training Panel Training & Economic Development Program
Department of Industrial Relations Apprenticeship Training
Department of Rehabilitation Vocational Rehabilitation
Department of Social Services Food Stamp Employment & Training
Greater Avenues for Independence
Refugee Assistance Services
State Personnel Board Career Opportunity Development
California Community Colleges Postsecondary Vocational Education
Department of Education Adult Education
Secondary Vocation
Educational & Regional Occupation Center Programs
M ilitary Department Urban Youth Corps
Source: California Research Bureau
In 1998, Congress abolished JTPA and created the Workforce Investment Act (WIA). During
1999 and 2000, California will be required to phase out JTPA, and implement WIA. The
implementation of WIA will require the establishment of a state level governing body, state
oversight and administrative procedures, state guidelines for coordination and collaboration,
45
local governing bodies, designation of geographical service areas, and establishment of a local
service delivery model.
According to the U.S. Department of Labor, the Workforce Investment Act of 1998 provid es the
framework for a unique national workforce preparation and employment system designed to
meet both the needs of the nation‟s businesses and the needs of job seekers and those who want
to further their careers. Title I of the legislation is based on the following elements:
- Training and employment programs must be designed and managed at the local level where the
needs of businesses and individuals are best understood.
- Customers must be able to conveniently access the employment, education, training, and
information services they need at a single location in their neighborhoods.
- Customers should have choices in deciding the training program that best fits their needs and
the organizations that will provide that service. They should have control over their own career
development.
- Customers have a right to information about how well training providers succeed in preparing
people for jobs. Training providers will provide information on their success rates.
- Businesses will provide information, leadership, and play an active role in ensuring that the
system prepares people for current and future jobs.
The Act builds on the most successful elements of previous Federal legislation. Just as
important, its key components are based on local and State input and extensive research and
evaluation studies of successful training and employment innovations over the past decade.
The new law makes changes to the current funding streams, target populations, system of
delivery, accountability, long-term planning, labor market information system, and governance
structure.
Title I authorizes the new Workforce Investment System. State workforce investment boards
will be established and States will develop five-year strategic plans. Governors will designate
local "workforce investment areas" and oversee local workforce investment boards. New youth
councils will be set up as a subgroup of the local board to guide the development and operation
of programs for youth. Customers will benefit from a "One-Stop" delivery system, with career
centers in their neighborhoods where they can access core employment services and be referred
directly to job training, education, or other services.
Title I requires that standards for success be established for organizations that provide training
services and outlines a system for determining their initial eligibility to receive funds. It
establishes the funding mechanism for States and local areas, specifies participant eligibility
criteria, and authorizes a broad array of services for youth, adults, and dislocated workers. It also
authorizes certain statewide activities and a system of accountability to ensure that customer
needs are met.
46
On October 10, 1999, Governor Davis, by Executive Order, established the California Workforce
Investment Board. The Board is to report to the Office of the Governor. Each member of the
Board appointed by the Governor serves at his pleasure. The Speaker of the Assembly and the
Senate Rules Committee will appoint two members each to the Board. The Order also
terminated the appointments to the State Job Training Coordinating Council. The purpose of the
Board is to perform the duties and responsibilities required by the federal WIA.
_____________________________ 1999 - 2000 LEGISLATION _______________________
SB 43 Johnston Employme nt Training Panel (ETP)*
Chapter 491, Statutes of 2000
Makes comprehensive changes in the operation of the ETP, including:
a) Eliminates the sunset date on ETP.
b) Makes the Executive Director of ETP a pleasure appointment of the Governor instead of a
four-year term appointment.
c) Streamlines the employer eligibility provisions for retraining contracts and requires all training
to be customized to specific requirements of one or more employers and to include
general skills that trainees can use in the future.
Note: As introduced this bill established the California Workforce Investment Board as the body
responsible for the development, oversight, and continuous improvement of California's work
force development system.
SB 88 Escutia Youth Councils*
Establishes the requirement that local workforce investment boards create youth councils to
develop the local approach to workforce training for youth.
Note: This bill was subsequently amended to relate to overtime compensation for computer
professionals.
SB 146 Solis Local Workforce Investment Boards*
Delineates the membership, duties, and powers of local workforce investment boards.
Note: This bill was subsequently amended to relate to mandatory overtime.
SB 178 Polanco Smart Communities Strategic
Investment Program
Died, Senate Appropriations
Committee
47
Requires the Department of Transportation to establish a "Smart Communities Strategic
Investment” program for the purpose of enabling the department to approach mobility fulfillment
offered by 'smart communities' in a manner consistent with the state's energy conservation and
air pollution abatement objectives.
SB 236 Solis Construction
Vetoed by the Governor
Precludes participants of job preparation and training programs from filling specified job
vacancies in the construction industry.
The Governor stated in his veto message, “While I support both state and fed eral laws that
protect workers from displacement by CalWORKs recipients, this bill is overly restrictive by
limiting the ability of welfare recipients to obtain seasonal jobs in the construction industry, even
when the seasonal employee is not rehired for cause.”
SB 516 Haynes Needy Families
Chapter 551, Statutes of 1999
Requires the Employment Development Department and the Department of Social Services to
adopt regulations interpreting a provision of federal law regarding state options to pro vide
federal Department of Labor block grant and CalWORKs employment services through
charitable, religious, or private organizations.
SB 899 Vasconcellos California Youthbuild Program
Died, Senate Appropriations
Committee
Creates the California Youthbuild Program within the Department of Industrial Relations to help
disadvantaged youth obtain education and employment skills in conjunction with the
construction or rehabilitation of housing for special need populations, very low income
households, and low- income households.
SB 1137 Vasconcellos Workforce Data Collection
Vetoed by the Governor
Creates a labor market information system for economic and workforce data collection, analysis
and dissemination, pursuant to implementation of the federal Workforce Investment Act of 1998.
The Governor stated in his veto message, “ . . . the bill is premature given that the new State
Workforce Investment Board has just been appointed. The new Board should be given the
opportunity to provide input into the development of the information reporting requirements, as
well as the resources and systems needed to manage workforce programs.”
48
AB 480 Ducheny WIA Fiscal Provisions*
Enacts provisions relating to the state administration of, and educational services under, the
federal Workforce Investment Act of 1998 by a California Workforce Investment Board. Enacts
provisions relating to the administration and distribution of funds, and relating to the
participation in the program by state agencies and local school districts and county offices of
education.
Note: This bill was subsequently amended to relate to a refundable credit for child and
dependent care expenses that are necessary for gainful employment.
AB 643 Wesson YouthBuild Program
Chapter 829, Statutes of 1999
Establishes a YouthBuild Program within the Employment Development Department to provide
grants to organizations which employ and train disadvantaged youth in conjunction with the
construction or rehabilitation of housing for low-income and other specified populations.
AB 702 Vincent Work-Force Investment and
Economic Development Act
Died, Senate Appropriations
Committee
Establishes the Work-Force Investment and Economic Development Act of 1999 to
Coordinate new and existing state programs with the federal Workforce Investment Act 1998.
AB 921 Keeley Apprenticeship
Chapter 903, Statutes of 1999
Changes the composition of the California Apprenticeship Counc il, revises related
apprenticeship standards for apprentices and programs, and requires periodic audits of existing
programs.
AB 926 Cedillo At-risk Youth
Chapter 573, Statutes of 1999
Applies specific requirements and guidelines to the expenditure of $1.25 million appropriated in
1998 for support of at-risk youth employment demonstration projects conducted by private non-
profit entities in six designated areas of the state.
AB 931 Calderon Apprenticeship
Chapter 781, Statutes of 1999
Requires the Division of Apprenticeship Standards to establish and validate minimum standards
for competency and training of electricians through a system of testing and certification.
49
AB 2481 Romero Apprenticeship
Chapter 875, Statutes of 2000
Revises civil penalties and enforcement actions for construction contractors who violate
specified apprenticeship requirements for public works contracts.
AB 2529 Shelley Career Advance ment Services
Died, Senate Appropriations
Committee
Appropriates $500,000 from the General Fund to establish a career advancement pilot program
for disadvantaged individuals in Los Angeles and San Francisco.
AB 2827 Cardoza Jobs for California Graduates
Program
Chapter 313, Stautes of 2000
Establishes a Jobs for California Graduates Program (JCGP), administered by the Employment
Development Department. This program is designed to help at-risk youths complete their
secondary education and acquire the skills necessary to successfully transition into the work
force.
AB 2906 Assembly Insurance California Training
Committee Benefit Program
Chapter 299, Stautes of 2000
Extends the California Training Benefit (CBT) program and authorizes the Employment
Development Department (EDD) to offset benefit overpayments against income tax refunds
continuously throughout the year.
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CLASSIFIED EMPLOYEES
AND
OTHER LEGISLATION
SB 360 Solis Short-term Employees
Vetoed by the Governor
Requires that before employing a short-term employee the governing board of the school or
community college district is required to specify the service required to be performed by the
employee and certify the estimated ending date of the service.
The Governor stated in his veto message, “This bill would make it logistically difficult for
districts to hire sufficient number of . . .staff to meet their operational needs.
SB 434 Johnston (Hughes) Charter Schools
Chapter 162, Statutes of 1999
As heard in committee, this bill made various technical and substantive changes to the
Education Code relating to school personnel commissions and the merit system and was
authored by Senator Hughes. Subsequently, the bill was authored by Senator Johnston and
related to charter schools.
SB 785 Speier Wage Reporting
Vetoed by the Governor
Permits employers of domestic workers to report wage earnings on an annual basis.
The Governor stated in his veto message, “This bill would result in substantial unbudgeted costs
for EDD and would require additional position authority. Furthermore, this bill could delay
processing of approximately 8000 Unemployment Insurance (UI) and Disability Insurance (DI)
on file to establish the amount of benefits payable to those claimants. This would res ult in
increased workload costs of more than $500,000 in the UI and DI programs to research those
claims. Moreover the processing delays could create an issue of nonconformity with federal
law.”
SB 1280 Chesbro Inte rmittent Positions
Died, Senate Appropriations
Committee
Limits the use of permanent intermittent positions that may be appointed by the Employment
Development Department as employment program representatives to not more than 10% of these
authorized positions. Any of these employees that have worked for two years at least 75 percent
of full time while in intermittent status are to be converted to full time permanent positions.
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SB 1566 Hayden Inte rnational Trade Agreements
Vetoed by the Governor
Requires the Director of the Department of Industrial Relation to review and assess any proposed
and existing international trade agreement that may adversely affect California laws and
regulations governing wages, working conditions, and workplace health and safety.
The Governor stated in his veto message, “International trade agreements are primarily within
the jurisdiction of the federal government. Therefore, it is unclear how information and
recommendations submitted to the Legislature will be relevant to the process.”
SR 32 Solis Labor Strike
Passed by the Senate
Urges the State of California to cease supporting Basic Vegetable Products (Basic) through state
purchases of basic products during a current labor dispute with the Teamsters Union Local 890
and calls upon Basic to negotiate in good faith and rescind the permanent placement of strikers.
AB 107 Knox Public Employee’s Health*
Benefits: Domestic Partners
Authorizes state and local employers to elect to include domestic partners within the definition of
"family members" for the purpose of providing health benefits under the Public Employees'
Medical and Hospital Act.
Note: This bill was subsequently amended to prohibit the Public Employees' Retirement System
and the State Teachers' Retirement System from investing in tobacco companies effective
January 1, 2001, and requires both systems to divest existing investments in those companies by
July 1, 2002.
AB 378 Steinberg Binding Arbitration
Vetoed by the Governor
Enables school boards and their classified employee representatives in non- merit school districts
to agree to binding arbitration on discipline and termination matters.
In his veto message, the Governor stated, “While I am supportive of binding arbitration in some
cases, I see no reason to alter the current system of discipline in school and community college
districts with regard to classified employees. School districts and community college districts
should retain the authority granted under current law.”
AB 442 Cedillo State Funds: Unionization
Vetoed by the Governor
52
Prohibits any recipient of state funds in excess $10,000, as defined, from using them to
discourage unionization.
The Governor stated in his veto message, “This legislation has the potential to impose an
unreasonable burden on businesses in that they would have to maintain minutely-detailed records
to track goods, services and funds received from the state in order to avoid violating the
provisions therein. [This bill] also has the potential to significantly increase employer‟s
litigation costs by providing countless opportunities for disgruntled employees to file civil
actions merely in an effort to harass employers.”
AB 542 Reyes Valley Freeze
Chapter 35, Statutes of 1999
Appropriates $1.867 million to support public service employment in areas affected by the
Valley freeze.
AB 940 Campbell Parent Volunteers
Died, Senate Industrial
Relations Committee
Allows any school district to use unpaid parent volunteers to perform specified jobs around the
school if the school board first adopts a resolution setting out certain conditions.
AB 1490 Washington Playground Employees
Vetoed by the Governor
Permits part-time playground positions where the employee is otherwise employed in a classified
position to be included in classified service.
The Governor stated in his veto message, “While I appreciate the effort to support classified
employees, I cannot support this bill because it would impose requirements retroactively as of
June 1, 1999. School districts have already approved their budgets and staffing requirements for
this school year, and this bill would cause considerable disruption if enacted in its current form.
In addition, this provision would prohibit districts from adjusting their staffing as a result of the
implementation of this bill. This would be an unnecessary intrusion on the local collective
bargaining process.”
AB 1634 Assembly Revenue and Wage Reporting
Taxation Committee Chapter 144, Statutes of 1999
Requires the Employment Development Department to include all types of wages counted
toward gross income in its quarterly wage reports rather than reporting only wages subject to
withholding.
AB 1693 Cardoza Migrant Education Programs
Chapter 693, Statutes of 1999
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Establishes procedures regarding the employment status of classified employees who are
employed in migrant education programs.
AB 1780 Washington Part-time Employees
Vetoed by the Governor
The Governor stated 9n his veto message, “While I appreciate this bill's effort to provide better
benefits for part-time playground monitors, this bill would mandate substantial increased costs to
school districts. I am concerned that requiring school districts to designate all part-time
playground monitors as classified employees would usurp the ability of local school districts to
set personnel policies that best meet their individual needs.
AB 1889 Cedillo State Funds: Unionization
Chapter 872, Statutes of 2000
Prohibits public employers or state contractors who receive state funds in excess of $50,000
from using these funds to discourage or encourage unionization.
AB 2497 Romero Sovereign Immunity
Vetoed by the Governor
Makes all State of California public agencies subject to the federal Fair Labor Standards Act
(FLSA). This bill also prohibits state agencies from claiming immunity pursuant to the Eleventh
Amendment to the United States Constitution.
The Governor stated in his veto message, “Individual employees who believe that their rights
under the federal FLSA have been violated may pursue their claims though the federal
Department of Labor (DOL). The DOL is an effective advocate for employees with legitimate
claims” and a much more cost-effective alternative for the State employer. As such, this bill is
not necessary and is not in the best interest of the public.
AB 2578 Wesson Notice of Layoff
Vetoed by the Governor
Increases the layoff notification period for classified employees from 30 to 60 days.
The Governor stated in his veto message, “This bill would require school or community college
districts to foresee their personnel needs 60 days in advance, which is not always possible. Many
districts are not notified until the final weeks of the fiscal year of programs that will continue to
be funded for the next fiscal year.”
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AB 2691 Corbett Personnel Commissioners
Chapter 488, Statutes of 2000
Allows classified employees in merit school districts or community college districts adopted
prior to September 17, 1965, to petition the governing board of the school district or community
college district to request that the process to determine how personnel commission members are
appointed be determined by a majority vote of the classified employees of the district.
AJR 37 Longville Steel Slabs
Died, Senate Industrial
Relations Committee
Memorializes the President of the United States and his trade representative to not include
restrictions on the import of steel slabs as a component of any trade agreement with other
nations.
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